f 


TC 225 
. N 7 A 3 

1909 60 th Congress, | HOUSE OF REPRESENTATIVES, j Document 
Copy 1 ^ ess ^ on ' l 


} No. 1488. 



U, A, COlv^w ; SLT Cy^rJ. IYaL 


0 J ' V ^ 

JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS 


FT MEADE 
GenCol 1 


NEW YORK. 


L E T T E R 


FROM 


THE SECRETARY OF WAR, 


TRANSMUTING, 


WITH A LETTER FROM THE CHIEF OF ENGINEERS, REPORTS OF 
EXAMINATION AND SURVEY OF JAMAICA BAY, ROCKAWAY 
INLET, AND WATERS HAVING OUTLET IN DEAD HORSE INLET, 
NEW YORK. 


February 27, 1909.—Referred to the Committee on Rivers and Harbors and ordered 

to be printed, with illustration. 


War Department, 
Washington, February 26, 1909. 

Sir: I have the honor to transmit, herewith, a letter from the 
Chief of Engineers, U. S. Army, dated 25th instant, together with 
copies of reports from Col. John G. D. Knight, Corps of Engineers, 
dated August 3, 1907, and January 30, 1909, with map, of a prelim¬ 
inary examination and survey, respectively, of Jamaica Bay, Rock- 
away Inlet, and waters having outlet in Dead Horse Inlet, New York, 
made by him in compliance with the provisions of the river and 
harbor act of March 2, 1907. 

Very respectfully, Luke E. Wright, 

Secretary of War. 

The Speaker of the House of Representatives. 




War Department, 

V>, C Office of the Chief of Engineers, 

Washington, February 25, 1909. 

Sir: I have the honor to submit herewith for transmission to 
Congress reports of August 3, 1907, and January 30, 1909, with 
map, by Col. John G. D. Knight, Corps of Engineers, on preliminary 
examination and survey, respectively, authorized by an item in 

•> ■ ' L » 


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Cj- 3S4 1 i - 
















2 JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. , C <A „ 

A, A 

(K* 

section 3 of the river and harbor act approved March 2, 1907, as \ 
follows: 

The waters of Jamaica Bay, including entrance to said bay at liockaway Inlet 
and those waters having their outlet in Dead Horse Inlet, with a view to framing a 
plan for their improvement and recommending the order of such improvement with 
the cost thereof, and to recommend the proportion of such cost to be borne by the 
city of New York; and the Secretary of War is hereby requested to confer and cooperate 
with the commissioner of docks and ferries of the city of New York, or with any other 
duly authorized agents, officers, or representatives of the city of New York, and with 
any commission of engineers appointed, or who shall hereafter be appointed, to survey 
or examine said bay and to recommend to the city of New York, plans for the improve¬ 
ment of said Jamaica Bay or the lands in and about said bay. 

The object of the proposed improvement contemplated by this item 
of the act is to provide a substantial increase in the harbor facilities 
for the commerce centering at New York City. Jamaica Bay is a 
broad, shallow body of water and the improvement necessary to make 
it available for deep-draft vessels amounts practically to the con¬ 
struction of an artificial harbor. The portion of the work which it is 
proposed shall be undertaken by the General Government is the con¬ 
struction of the entrance channel and the main interior channel, 
leaving,to the local authorities the work of providing secondary chan¬ 
nels and basins, piers, bulkheads, etc. 

The cost (in round numbers) of the work to be done by the United 
States is estimated by the local officer at $8,610,000; for the reasons 
given in its report of February 23, 1909 (also herewith), the Board of 
Engineers for Rivers and Harbors reduces this estimate to $7,430,000. 

It is noted, however, that in both these estimates one item amounting 
to $589,500, and possibly a second amounting to $724,500, may be 
found to be unnecessary, in which case the total estimated cost would 
be reduced to about $6,000,000 and $5,000,000, respectively. 

The cost of the work to be borne by the city of New York is vari¬ 
ously estimated at $13,565,360, $47,089,375, and even as much as 
$70,000,000. . 

The order in which it is proposed that the work to be done by the 
General Government shall be prosecuted, if authorized, is given in 
detail in the reports of the local officer and of the Board of Engineers 
for Rivers and Harbors. In brief, it is, first, to obtain and maintain 
an entrance channel 18 feet deep and 500 feet wide, this work not 
to be inaugurated until the Secretary of War is satisfied that the 
-city of New York is prepared to undertake its share in the proposed 
improvement; second, when required by the demands of commerce, 
to enlarge the entrance channel to a depth of 30 feet and a width of 
1,500 feet and the main interior channel to a depth of 30 feet and a 
width of 1,000 feet. If found by experience to be advisable, jetties 
are to be constructed to aid in maintaining the entrance channel. 

I concur in the opinion of the district officer and the Board of 
Engineers for Rivers and Harbors that this locality is worthy of 
improvement in accordance with some progressive plan for joint 
prosecution by the United States and the local authorities; but it is 
also my opinion that the United States should not at this time be 
committed further than to a project for securing a depth of 18 feet, 
as provided in the first step of the progressive improvement recom¬ 
mended in the reports herewith. Any further improvement should 
be clearly shown to be in the interests of commerce, and the next 

step might properly provide for lesser depths than the 30 feet pro- 

# * * 

♦ • 

% • • 

"vsr 


JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 3 


Ci 

ui) 

o 


posed by the second step in the plan now presented, and for a cor¬ 
responding reduction in cost to the United States. In any event, 
the total ultimate cost to the United States for the improvement 
of this locality should not exceed the amount of the estimate sub¬ 
mitted by the Board of Engineers for Rivers and Harbors for chan¬ 
nels of the maximum dimensions contemplated by the reports 
herewith, namely, $7,430,000, plus the cost of maintaining the 
entrance channel. 

In the course of these investigations and the preparation of his 
report, Colonel Knight conferred freely with the Jamaica Bay 
Improvement Commission, which was appointed by the mayor of 
New York for this purpose, such conferences being held in con¬ 
formity with the terms of the act as quoted above. 

Very respectfully, 


The Secretary of War. 


W. L. Marshall, 
Chief of Engineers , U S. Army. 


PRELIMINARY EXAMINATION OF JAMAICA BAY, NEW YORK, INCLUDING 

ITS ENTRANCE AT ROCKAWAY INLET AND THE WATERS HAVING 

OUTLET IN DEAD HORSE INLET. 

United States Engineer Office, 

New York City, August 8, 1907. 

Sir: I have the honor to submit the following report upon a pre¬ 
liminary examination of Jamaica Bay at Rockaway and Dead Horse 
inlets, etc., made in compliance with department letter, dated March 
4, 1907, and pursuant to the requirements of the river and harbor 
act of March 2, 1907, of which the following is an extract: 

The waters of Jamaica Bay, including entrance to said bay at Rockaway Inlet 
and those waters having their outlet in Dead Horse Inlet, with a view to framing 
a plan for their improvement and recommending the order of such improvement with 
the cost thereof, and to recommend the proportion of such cost to be borne by the city 
of New York; and the Secretary of War is hereby requested to confer and cooperate 
with the commissioner of docks and ferries of the city of New York, or with any other 
duly authorized agents, officers, or representatives of the city of New York, and with 
any commission of engineers appointed, or who shall hereafter be appointed, to survey 
or examine said bay and to recommend to the city of New York, plans for the improve¬ 
ment of said Jamaica Bay or the lands in and about said bay. 

Attention is invited to United States Coast and Geodetic Survey 
chart No. 120, the Brooklyn quadrangle of the United States Geo¬ 
logical Survey map, and the map accompanying House Document 
No. 442, Fifty-ninth Congress, second session. 

United States river or harbor work in Jamaica Bay has for some 
time been limited to providing two dikes and dredging between 
them to secure a 6-foot channel of from 100 to 150 feet width, con¬ 
necting the steamboat dock at Canarsie with Big Channel, and dredg¬ 
ing two channels 50 feet wide and 4 or 5 feet deep running south¬ 
westerly and northeasterly from Canarsie Landing. 

An examination and survey across the bar lying west of Rockaway 
Inlet to deep water in Jamaica Bay, with a view to estimating the cost 
of securing a channel 20 feet deep and 600 feet wide at low tide, was 
reported upon December 31, 1906, but at that time it was deemed not 



4 JAMAICA BAY, AND KOCKAWAY AND DEAD HORSE INLETS, N. Y. 

advisable for the United States to undertake the improvement of 
Rock aw ay Inlet.® 

But what was deemed inadvisable then may be advisable to con¬ 
sider more favorably now that a commission appointed by the 
mayor of New York has reached among other conclusions the 1 ol¬ 
io wing: 

That most of that portion of the shore front of Manhattan which is adapted to busi¬ 
ness is now in use, that greater facilities can only be secured at enormous expense, and 
furthermore, that even these improvements will do little to relieve the present con¬ 
gestion. 

That as a result of the above we believe that the time is fast approaching when the 
city will be compelled to make use of portions of the water front in other boroughs, 
and that for business reasons, if for no other, steps in this direction should at once 
be taken. 

That it is our opinion that no place in any part of Greater New York offers greater 
opportunities for profitable investments than the territory in Jamaica Bay. 

The commission recommended that such city officials as are dele¬ 
gated to represent the city in the conference to be held with the 
federal authorities in this matter of the Jamaica Bay improvement 
be instructed to urge strongly upon the War Department the neces¬ 
sity of the army engineers again taking up the question of improving 
Rockaway Inlet; also that the Federal Government be strongly 
urged to defray the expense of a 1,000-foot channel within Jamaica 
Bay..... 

This commission expired last May, after reporting upon the general 
improvement and development of Jamaica Bay, and also upon the 
condition of the water front of the city of New York other than that 
of Manhattan Island ; but a new commission having the same mem¬ 
bership as the former commission has been appointed, with instruc¬ 
tions to confer with the Secretary of War relative to the survey or 
examination of Jamaica Bay and to recommend plans for the improve¬ 
ment thereof. 

In my opinion a further examination and survey of the waters of 
Jamaica Bay, including entrance to said bay at Rockaway Inlet and 
those waters having their outlet in Dead Horse Inlet, is justified not 
only by the prospective development of New York City within the 
limits of Jamaica Bav, but also because without such examination and 
survey it will be impracticable to frame a plan for the improvement 
of these waters and recommend the “order of such improvement with 
the cost thereof, and to recommend the proportion of such cost to be 
borne by the city of New York,” as contemplated by the provisions 
of the act of March 2, 1907. 

I recommend that such examination and survey be authorized and 
that the sum of $4,500 be allotted to meet the cost thereof. 

Very respectfully, your obedient servant, 

John G. D. Knight, 
Colonel, Corps of Engineers. 

The Chief of Engineers, U. S. Army. 


° See House Document No. 442, Fifty-ninth Congress, second session. 





JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 5 

[Second indorsement.] 

Board of Engineers for Rivers and Harbors, 

Washington, I). C., August 12, 1907. 

Respectfully returned to the Chief of Engineers, U. S. Army. 

The object of this examination is explained by the wording of the 
act, which involves the general improvement of Jamaica Bay and its 
entrance through Rockaway Inlet. The district officer is of opinion 
that a further examination and survey are justified, not only by the 
prospective development of New York City within the limits of Ja¬ 
maica Bay, but also because such further examination and survey are 
necessary in order to frame a plan for the improvement contemplated 
and to recommend the order of such improvement, with the cost 
thereof, as directed in the act. 

Under an act of Congress, approved June 28, 1906, an examination 
and survey of Rockaway Inlet to deep water in Jamaica Bay was 
made and reported upon unfavorably by the district officer. The 
Board of Engineers for Rivers and Harbors, in reviewing said report, 
concurred in the views of the district officer, and stated that “the 
commerce of Jamaica Bay is considerable and would be somewhat 
benefited by a stable and deeper channel through the inlet. The 
extent of the benefits would, however, appear to be limited to a small 
part of the total commerce of the bay for the reason that outside of 
Rockaway Beach itself there are few, if any, localities of importance 
where the available navigable depth exceeds the natural depth at the 
inlet.” The examination at that time contemplated only the im¬ 
provement at the entrance to the bay and not the improvement of 
any part of the bay itself or its tributary channels, and by reason of 
this limitation would have been of little value, as deep-draft boats 
entering through an improved inlet could not have reached any of 
the several ports within the bay. 

The scope of the present examination is very much more exten¬ 
sive than the one just referred to, involving not only the improvement 
of the entrance to the bay, but of the entire bay itself, one of the 
main objects of the investigation being to provide additional wharf 
and dockage facilities for the congested commerce of New York City, 
this location being the best available for such development. 

Having in mind the great importance of the questions involved in 
this examination, and of the necessity of a survey in order to frame 
a comprehensive plan of improvement with an estimate of the cost 
thereof, as required by the act, the Board concurs with the district 
officer in recommending that a survey be authorized. 

For the Board: 

D. W. Lockwood. 

Colonel, Corps of Engineers, 

Senior Member of the Board. 

I 

[Third indorsement.] 

War Department, 

Office of the Chief of Engineers, 

Washington, August 16, 1907. 

Respectfully submitted to the Secretary of War. 

This is a report on preliminary examination of the waters of 
Jamaica Bay, including the entrance to said bay at Rockaway Inlet, 


6 JAMAICA BAY, AND ROCK AW AY AND DEAD HORSE INLETS, N. Y. 


etc. (the full text of the item being quoted within), authorized by the 
river and harbor act of March 2, 1907. 

Inviting attention to the report of the Board of Engineers for 
Rivers and Harbors in the preceding indorsement, I recommend that 
a survey of the locality as proposed be authorized. 

If this recommendation receive favorable consideration by the 
Secretary the district officer will be directed, pursuant to the provi¬ 
sions of the witliin-quoted item of law, to cooperate with the proper 
officials of the city of New York in connection with the preparation 
of a plan and estimate of cost of improvements contemplated. No 
communication on the subject has as yet been received in this office 
from the officials of New York City. 

A. Mackenzie, 

Brig. Gen. Chitf of Engineers, U. S. Army. 


[Fourth indorsement.] 

War Department, 

August 19, 1907. 

Approved as recommended by the Chief of Engineers in the pre¬ 
ceding indorsement. 

Robert Shaw Oliver, 

Acting Secretary of War. 


SURVEY OF JAMAICA BAY, NEW YORK, INCLUDING ITS ENTRANCE 
AT ROCIvAWAY INLET, AND THE WATERS HAVING OUTLET IN DEAD 
HORSE INLET. 

War Department, 

United States Engineer Office, 

New York City, January 30, 1909. 

Sir: August 3, 1907, I submitted a report upon a preliminary 
examination of Jamaica Bay at Rockaway and Dead Horse inlets, 
etc., in which I recommended a further examination and survey. 

August 19, 1907, the Secretary of War authorized this survey; 
* * * 

I now have the honor to submit the following final report and 
accompanying map of the survey. 

By section 3 of the river and harbor act of March 2, 1907, the 
Secretary of War was directed to cause a preliminary examination 
or survey to be made of— 

The waters of Jamaica Bay, including entrance to said bay at Rockaway Inlet 
and those waters having their outlet in Dead Horse Inlet, with a view to framing a 
plan for their improvement and recommending the order of such improvement with 
the cost thereof, and to recommend the proportion of such cost to be borne by the 
city of New York; and the Secretary of War is hereby requested to confer and coop¬ 
erate with the commissioner of docks and ferries of the city of New York, or with any 
other duly authorized agents, officers, or representatives of the city of New York, 
and with any commission of engineers appointed, or who shall hereafter be appointed, 
to survey or examine said bay and to recommend to the city of New York, plans for 
the improvement of said Jamaica Bay or the lands in and about said bay. 

The conference and cooperation directed were had by me,and only 
with the Jamaica Bay Improvement Commission, whose appointment 
rendered conference and cooperation with other agents of the city of 
New York unnecessary. 



JAMAICA BAY, AND ROCK AWAY AND DEAD HORSE INLETS, N. Y. 7 

The commission was originally appointed April 26, 1906, for the 
purpose of reporting upon the general improvement and develop¬ 
ment of Jamaica Bay, and also upon the condition of the water front 
of the city of New York other than that of Manhattan Island. It 
submitted its report May 31, 1907, and expired June 1, 1907; but 
was reappointed June 7, 1907, and to its original duties was added 
that of conferring with the Secretary of War relative to the survey 
or examination of Jamaica Bay, and to recommend plans for the 
improvement thereof. 

The commission has placed at my disposal copies of its report of 
May 31, 1907, and all surveys made or information collected by it 
which would aid me in the examination of Jamaica Bay, in minimizing 
the attendant expense, and in preventing duplication of work. These 
have been of great assistance and freely used in the preparation of 
this report. 

Conferences have been freely had, mainly with a view to agreeing 
upon the location of a principal channel, but also relative to desirable 
secondary channels through the collection of islands lying in the cen¬ 
tral portion of Jamaica Bay. 

Harbor lines limiting the principal channel on the west and north 
sides thereof have been in general agreed upon, subject to approval 
of higher authorities, but harbor lines limiting the principal channel 
on the east and south and the secondary channels should not be defi¬ 
nitely determined until the data collected as to tidal range and dis¬ 
charge have been digested, with the view to determining allowable 
limits to encroachment upon the tidal basin. The maintenance of 
the capacity of this basin necessary to secure a maximum tidal scour 
through the entrance is all-important in the absence of any appreciable 
fresh-water discharge. 

This study will require time. Its results will be of importance when 
the establishment of harbor lines other than those on the west and 
north side of the principal channel are under final consideration by 
the War Department, but are not essential to this report. The 
improvement of Jamaica Bay to the west and north of the principal 
channel will naturally be undertaken long before that of the islands 
in the bay, and will itself be a work of years. 

What are the commercial and other interests, present and pros¬ 
pective, which may justify the improvement under consideration? 
The answer is, the commerce of the port of New Tork and the wharf¬ 
age and other terminal facilities needed therefor. 

Custom-house statistics for the port of New York for the calendar 
year 1908 are as follows: 

Net tonnage. 


Vessels entering from foreign ports (4,183). 12,481, 8bl 

Vessels clearing for foreign ports (4,061). 12,327, 372 

Value of imports—those for December estimated at $60,000,000. $641, 552, 984 

Value of domestic exports—for December estimated at $48,000,000. $614,489, 283 

Value of foreign exports—for December estimated at $950,000. $12,109, 823 

Duties collected—for December estimated at $16,695,244. $176, 552, 892 


In addition, it is estimated that commerce valued at about 
$2,000,000 passes through New York monthly in transit to other 
countries without being landed, and about $500,000 per month of 
Canadian products are held in bond in passing through the United 
States to other countries. These statistics are for the port of New 
York, only including Jersey City, but not Newark and the Amboys. 








8 JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 

The increase, in twentyfvears, of tonnage entering and clearing was 
121 per cent. 

The report of the Chamber of Commerce of New York for the year 
ending June 30, 1908, states that three-fourths of all the sugar 
imported enters the port of New York; nearly three-fourths the 
coffee and nearly one-half the tea; considerably more than three- 
fourths of all the cotton, silk, and wool manufactures; 96 per cent 
of all the India rubber; nearly 60 per cent of the hides and skins; 
and over SO per cent of the tin. 

Mr. Elmer L. Corthell stated to the Eighth International Naviga¬ 
tion Congress at Paris, France, that the total tonnage of the port of 
New York in 1899 was 79,544,000 tons, subdivided as follows: 
Interior, 25,093,000 tons; coastwise, 39,250,000 tons; foreign, 
15,201,000 tons. The amount of foreign tonnage practically agrees 
with the amount reported bv the United States customs service. 

From the figures given by Mr. Corthell, it appears that the foreign 
trade of New York constitutes but 19 per cent of the total. 

The Jamaica Bay Improvement Commission has plat ted the curve of 
foreign tonnage for the port of New York from 1853 to 1905, inclusive, 
and deduces from this curve that in 1915 this tonnage will amount to 
21,366,300. Assuming interior and coastwise tonnage to increase in 
the same ratio, and the ratio of 19 per cent of these to foreign ton¬ 
nage to continue, the total tonnage of the port will, in 1915, be 
112,454,000 tons. To this the commission adds 10,000,000 tons, 
which is one-half of the estimated capacity of the New York barge 
canal, making a total of 122,454,000 tons, as against 79.544,000 tons 
for 1899. 

The commission believes this a conservative assumption. That 
it is so is in part demonstrated by the fact that the 1908 foreign ton¬ 
nage of New York was 24,809,233 tons (December tonnage estimated), 
and the 1907 tonnage 25,093,686 tons. Assumptions have been made 
as to rate of increase of tonnage, be it interior, coastwise, or for¬ 
eign; but the records of the customs service, freed from all assump¬ 
tions, show that in 1885 the foreign tonnage entered and cleared at 
New York was 11,100,457 tons; and in 1907, 25,093,686 tons. In 
other words, in twenty-two years there was an increase of 126 per 
cent. 

What has been the increase in wharfage to meet the increase of 
tonnage? What wharfage will be provided by the improvement 
under consideration ? 

Mr. William G. Ford, a member of the Jamaica Bay Improvement 
Commission, has kindly placed at my disposal information gathered 
by him relative to these subjects and to others considered in this 
report. 

It appears that prior to 1901 data as to wharfage construction were 
not collected with accuracy; but that from 1901 to 1907, both years 
inclusive, 125,605 linear feet of wharfage were torn out and 250,666 
feet constructed, showing a net gain of 125,061 feet, or a mean annual 
gain of 17,867 linear feet or 3.38 miles. During the same period, the 
tonnage of foreign commerce increased from 16,797,700 tons to 
25,093,686 tons, an increase of 50 per cent. 

These figures show an increase of wharfage of 100 per cent during a 
period of increase of foreign tonnage of 50 per cent. It is not reason¬ 
able to suppose that in future years the increase of wharfage will be 


JAMAICA BAY, AND ROCKAWAY AND DEAL) HORSE INLETS, N. Y. 9 


double the increase of foreign tonnage. So an attempt must be made 
to determine from other considerations than relative increase of 
tonnage what increase in wharfage must be provided. 

The information in the two following paragraphs is taken from an 
editorial in the Engineering Record of July 4, 1908: 

The present available wharfage of the port of New York is about 1,000,000 linear 
feet; of this only about 10 per cent is given to ocean-going vessels. Most of the increase 
of wharfage of that port for the past ten years is to accommodate this class of vessels. 
Only certain tracts of the Brooklyn and Staten Island shores were found to be available 
without very great expense for increase of wharfage on upper New York Bay. These 
tracts aggregate about 50,000 feet of water front and could be made to provide 250,000 
feet of wharfage. The board of street and water commissioners of Newark, N. J., be¬ 
lieves that, together with what will be made available on the Hudson River, will 
probably provide wharfage room to care for all requirements for the next fifteen years. 

“One method of arriving at the probable requirements for a port of foreign shipping 
is through a study of the imports and exports of some existing port, and their relation 
to the growth of the manufactures of the vicinity. It has been found that the increase 
of foreign tonnage follows very closely the growth of the value of manufactures in the 
United States and applies to many of the coast cities. The probable future value of 
manufactures can, therefore, be taken in arriving at the probable needs for foreign 
shipping facilities at any date in the future.” 

I have followed a method proposed for determining the amount of 
future tonnage from the value of manufactures, which results in the 
following per capita values and tonnage: 


Per capita. 


Value. 

Tonnage.tons.. 


Imports. 

Exports. 

$58. 30 j 

$66.37931 

1. 4575 

1.106322 


Or a total per capita export and import tonnage of 2.563822 tons. 

But the total like tonnage for New York, when divided by the 
population of that city for the years 1890, 1900, and 1905, gives 
respectively, 4.90, 4.66, and 4.72 tons. 

it seems futile to attempt to determine with any precision what 
will be the commerce of New York at some distant date, what will be 
the necessary wharfage to accommodate it. New York will increase 
in population and in manufactures; but both will be spread over an 
area extending to Yonkers on the north, to the western end of Long 
Island Sound in the northeast, and including Jamaica Bay on the east. 
The increase of tonnage of the port of New York can not be measured 
by an increase in population of this large area, which, though consoli¬ 
dated in one municipality, must for many purposes have lesser semi- 
independent objectives. 

We can sav that this tonnage will greatly increase and that it is 
thought that in ten years available water fronts for wharfage around 
Manhattan and in upper New York Bay will be exhausted. Provi¬ 
sion for additional frontage must be made, which provision should be 
on New York Bay if practicable, and Jamaica Bay affords the only 
site for such addition. 

With reference to this section, Edward M. Grout, ex-comptroller of 
New York City, stated— 

if properly developed this area would produce 120,000 feet of bulkhead around the 
mainland, and depending upon the channels to be laid out would have, in addition, 
from two to three times that number of feet of bulkhead around the land to be filled 
in within the limits of the bay. 












10 JAMAICA BAY, AND ROCK A WAY AND DEAD HORSE INLETS, N. Y. 

' He thought it desirable that a— 

plan for the general improvement should first be determined upon and bulkheads 
constructed, in order that the excavated sand may be utilized for filling in behind the 
city’s bulkheads, rather than to be used by the contractor for reclaiming private land. 

Such a plan, shown in part on map accompanying this report, has 
been developed by the Jamaica Bay improvement commission, and in 
harmony with it is the plan now presented for the improvement of 
waters in the bay, including its entrace, and those waters having their 
outlet in Dead Horse Inlet. 

A channel 43,000 feet long measured along the westerly and north¬ 
ern pierhead line is provided, giving access to 80 piers on the main¬ 
land, assuming piers to have a normal width of 125 feet and slips a 
like width of 300 feet. If the piers are built at an angle of 45 degrees 
with the bulkhead line, each will be 1,000 feet long. Hence 160,000 
linear feet of wharfage may be constructed. 

The. improvement later of the islands within the bay may be so 
planned as to provide more wharfage than the amount provided along 
the mainland shore. 

Plans for developing the lands lying in the interior of the bay are 
still under consideration, and for reasons above given they may well 
be delayed. Relief to commerce for many years will be provided, if 
so much of the plan as relates to the mainland is carried out. 

It is, however, here suggested that the secondary channels through 
the islands should radiate from the entrance of the bay, and should 
be so located as to limit the number or drawbridges in the railroad 
crossing the bay to two. One channel might run from the entrance 
to the bridge crossing the main north channel; another to the bridge 
crossing the south or Beach channel, and, after passing the bridge, 
divide into two, of which one should run northeast, the other follow 
Hassock channel eastward. 

Congress might well declare to be nonnavigable waters of the United 
States all channels meandering through the islands within the bay 
other than the secondary channels to be agreed upon at some future 
date. The War Department should issue no permits for structures on 
or across navigable waters of the bay, whose existence would not be 
in harmony with the scheme of secondary channels to be formulated. 

The plan for improving the waters of Jamaica Bay, other than the 
secondary channels, contemplates affording an entrance to the bay 
of a minimum width of 1,500 feet and depth of 30 feet at mean low 
water, and a main channel following the western and northern limits 
of the bay, which channel is to be 1,000 feet wide and 30 feet deep. 

For some vears the widths of the entrance and the main channel 
need not be greater than 500 feet and their depths 18 feet, as the 
principal use for that time of these channels will be to afford a water 
way for vessels bringing in material for wharf and other structures, 
whose construction must precede the ultimate development of the 
improvement. 

The direction recommended for the entrance channel off Rockaway 
Point is northeasterly, thence easterly to its connection with the 
main channel. This line follows the deep-water channel now exist¬ 
ing. A shoal lies to the east of this channel south of Rockaway 
Point, which shoal is connected by a bar with the shoal to the north¬ 
west of the channel. It is proposed to dredge through this bar in the 
line of the existing channel prolonged. 


JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 11 

Comparison of surveys shows a progressive movement of Rockaway 
Reach westward, and this may ultimately necessitate a jetty running 
southwesterly lrom ockaway Point to diminish the shoaling of the 
proposed channel. Later another jetty may be required to prevent 
like shoaling by sand from the west, but the necessity of its con¬ 
struction remains to be demonstrated. Dredging alone should be 
first resorted to, to provide a depth of not more than 18 feet over 
the bar. The eastern jetty should be built so soon as necessary to 
the economic maintenance of the channel of 18 feet or greater depth, 
and finally, should like maintenance of channel demand, the western 
jetty. 

The eastern jetty is planned to extend to the 18-foot curve at a point 
where the shoal drops suddenly to a depth of 36 feet. This will bring 
it to a line at which the shoal formation seems to end, or to what has 
been termed the neutral axis. But it can not be asserted that this 
axis will not move seaward with the construction of the jetty. 

No neutral axis is defined to the west of the entrance channel; 
hence the ultimate length of the west jetty can not now be deter¬ 
mined. It is tentatively located, to start from the eastern half of 
Manhattan Beach of Coney Island, and extend southward to the 30- 
foot curve. But, as before stated, the necessity of the construction of 
this jetty is not yet demonstrated. The eastern jetty may prevent 
the increase of the shoal off Coney Island, and this shoal may even 
be reduced by the action of the sea. 

The cost of the western jetty is only included to present, as far as is 
now foreseen, the possible total cost to the United States of the 
proposed improvement. 

The order of so much of the plan of improvement above outlined 
as should be executed bv the United States is: 

First. Dredge a channel 18 feet deep and 500 feet wide through the entrance as 
far as the southeast corner of Barren Island; in other words, to the beginning of the 
main channel. 

Second. Maintain this entrance channel. 

Third. Increase this channel to a width of 1,500 feet and depth of 30 feet. 

Fourth. If in maintaining this channel it be found advisable to construct the east 
jetty, do so under continuing contract, for once its necessity is determined, economy 
of construction will demand continuous, speedy work. 

Fifth. Construct the west jetty, gradually extending it to such length as mg,y be 
found advisable. 

Dredging the main channel is not included above for reasons which 
will be given later. 

The 18-foot channel should not be dredged until the Secretary of 
War is satisfied that the city of New York is prepared to undertake 
the dredging of the main channel to a like depth. 

What is the cost of the improvement proposed , and of its mainte¬ 
nancet —The ultimate cost of the improvement, so far as now fore¬ 
seen, is estimated at $8,610,050, as follows: 


Dredging the 18-foot entrance channel, allowing 1 foot for overdepth; re¬ 
moving 835,000 cubic yards, place measurement, at 30 cents. $250, 500 

Widening and deepening this channel, 10,165,000 cubic yards, place meas¬ 
urement, at 10 cents. 1,016, 500 

East jetty, estimating 1.5 short tons per cubic yard for voids and settlement, 

483,000 tons, at $1.50. 724, 500 

West jetty, 393,000 tons, at $1.50. 589, 500 

Contingencies, 5 per cent. 129,050 

Dredging main channel, 59,000,000 cubic yards, at 10 cents. 5,900,000 


Total. 8,610,050 










12 JAMAICA BAY, AND KOCKAWAY AND DEAD HORSE INLETS, N. Y. 

The cost of maintenance can only be roughly estimated. Expe¬ 
rience alone will determine the cost of repairs of jetties, which will 
vary with storms and other causes of subsidence. It is probable that 
the bar at the outer end of the entrance channel will re-form, but at 
what rate can not be predicted. Assuming that it will regain its 
present dimensions in three years, an average of 278,000 cubic yards 
must be removed annually, which, at 20 cents per yard, will cost 
$55,600. 

The tentative estimate of annual cost for maintenance is assumed 
thus at $55,600. 

What proportion of the cost of the improvement is to be borne by the city 
of New Yorh? —Before making recommendation as to this, it may be 
well to summarize the estimates so far reported by the Jamaica Ba} r 
Improvement Commission of the cost to the city of New York of the 
plans for the development of Jamaica Bay, including both the crea¬ 
tion of channels and the reclamation of land. 

These estimates are taken from the majority and minority reports. 

Majority report. 


Filling 106,491,300 cubic yards, at 10 cents. $10, 649, 130 

Bulkheads: 

12,140 feet, at $72. $874, 080 

65,650 feet, at $16. 1, 050, 400 

-— 1, 924, 480 

Sand embankment with riprap slope, 193,230 linear feet, at 

$2:40. 463, 750 

Land: 

431 acres, at $750.^. 323, 250 

To be purchased for grading streets, 315 acres, at $650_ 204, 750 

- 528,000 


Total. 13,565,360 


Minority report. 


■ Dredging 281,500,000 cubic yards, at 12 cents. 33, 780, 000 

Filling 280,000,000. 

Bulkhead, 301,975 feet, at $25....... 7, 549, 375 

Engineering, inspection, and administration. 1,000,000 

Land, 6,800 acres, at $700. 4, 760, 000 


47, 089, 375 

The less expensive types of bulkheads must ultimately be replaced 
by others of greater permanency. 

These estimates cover only what may be termed the initial expense 
to the city; that of the majority differs from the minority estimate 
in providing no wharves on the islands within the bay and in assuming 
a main channel of 20 feet depth instead of 25 feet. 

Both majority and minority reports indicate auxiliary channels 
and basins. 

Sufficient has been stated to show that if the city of New York 
enters upon the execution of either of the plans outlined it will face 
the expenditure of millions of dollars for works beneficial to both the 
United States and the city. 

The dividing line between the works for the improvement of navi¬ 
gation to be executed by the General Government and by the city, 
should, it is thought, be such that the General Government will pro- 

















JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 13 

vide the main waterway and the city the auxiliary waterways and 
basins. 

The commission’s plans contemplate the use of dredged material 
to fill lands behind bulkheads or embankments to be constructed by 
the city. Complications with government contractors are sure to 
arise, when an attempt is made to coordinate areas of dredging with 
areas of fill, at varying distances each class from the other, the areas 
of dredging to be indicated by the Government, the areas of fill to 
depend upon the construction of embankments or bulkheads by the 
city. 

The commission reports that “by an arrangement with the city 
to the effect that dredgings from the bay could be placed upon the 
city’s land, the cost to the Government would be but 10 cents.” 
Such an arrangement would be to the interest of the Government, 
though as above outlined, difficulties would arise in its execution 
which can best be surmounted by one party having charge of both 
the dredging and the filling. 

I therefore recommend that the dredging of the main channel be 
required of the city of New York and that the city be reimbursed 
therefor at the rate of 10 cents per cubic yard place measurement 
for all material dredged within the limits of the main channel to the 
extent of $5,900,000, less cost to the Government of superintendence, 
surveying, and inspecting. 

The main channel commences at the inner end of the 1,500-foot 
entrance channel, includes all widenings at angles, and terminates 
at the mouth of Cornells Creek. Five million nine hundred thou¬ 
sand dollars is the estimated cost of dredging this channel to a depth 
of 30 feet. Any cost of dredging this channel in excess of this esti¬ 
mate reduced by cost of superintendence, etc., should be borne by 
the city. The city should not be reimbursed for any material 
dredged from below a depth of 30 feet below mean low water, as 
determined by the United States engineer survey of 1908. 

Summary .—The plan of improvement of the waters of Jamaica 
Bay, including entrance to said bay at Rockaway Inlet and those 
waters having their outlet in Dead Horse Inlet, as recommended is to 
provide ultimately an entrance channel 1,500 feet wide and 30 feet 
deep through Rockaway Inlet to a main channel within the bay 
which shall be 1,000 feet wide, except where widened at angles, and 
30 feet deep; auxiliary interior channels in general direction as 
indicated above; and if needed two stone jetties at the mouth of 
the entrance channel, one extending from the western end of Rock¬ 
away Beach, the other from the eastern half of Manhattan Beach, 
Coney Island. 

The order recommended of such improvement is first, to dredge 
the entrance channel for a width of 500 feet to a depth of 18 feet, as 
outlined above in last paragraph of section 9; second, to maintain 
this channel; third, widen and deepen this channel in proportion to 
the demands of commerce, ultimately to a 1,500 foot width and 30 
feet depth; fourth, construct east jetty, when its necessity is deter¬ 
mined; fifth, construct west jetty, as necessity is determined. 

The proportion of the cost to be borne by the city of New York 
which is recommended is the cost of dredging all auxiliary interior 
channels and basins, and any cost of dredging the main channel in 


14 JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 

excess of $5,900,000, which sum, less expense to the United States 
for superintendence, surveying, and inspecting, is to be paid to the 
city for material actually dredged from the main channel within the 
prescribed limits, it being understood that the city shall dredge the 
main channel to the dimensions stated and shall receive no other 
reimbursement therefor from the United States except the sum stated. 

It is further recommended that Congress declare nonnavigable 
those waters which lie between the islands within Jamaica Bay, but 
do not lie within the limits of such waterways as may be improved 
by the city of New York, on plans recommended by the Chief of 
Engineers, and authorized by the Secretary of War. 

As above outlined, I believe the waters of Jamaica Bay, including 
entrance to said bay at Rockaway Inlet and those waters having 
their outlet in Dead Horse Inlet to be worthy of improvement by 
the General Government. 

Very respectfully, your obedient servant, 

John G. D. Knight, 

Colonel , Corps of Engineers. 

The Chief of Engineers, U. S. Army. 

[Second indorsement.] 

Board of Engineers for Rivers and Harbors, 

Washington , D. C., February 23, 1909. 

Respectfully returned to the Chief of Engineers, U. S. Army. 

The within is a report of the district officer on the subject of the 
improvement of Jamaica Bay, New York, made after a survey of the 
locality and conferences with the Jamaica Bay Improvement Com¬ 
mission, representing the city of New York in this matter. 

The object of the improvement is to provide additional facilities for 
handling the large and increasing commerce of the port of New York 
which is rapidly reaching a state of congestion, and which at the 
present rate of increase will within a few years exceed available 
facilities. 

The scheme of improvement involves a deep-water entrance into 
the bay, the development of a main broad channel with auxiliary 
channels of lesser width, the bulkheading of the main shore and 
certain island areas, the filling behind the bulkheads, and the con¬ 
struction of wharves, slips, etc. It is proposed that the expense shall 
be borne in part by the city of New York and in part by the United 
States. 

The total cost of development is not definitely known, but it 
involves many millions, as indicated by estimates of the Jamaica Bay 
Improvement Commission, which, in a majority and a minority 
report, places the cost on the part of the city of New York at 
$13,565,360 and $47,089,375, respectively, for work inside the 
entrance, including, however, only the dredging of channels, the 
building of bulkheads, the reclamation of low areas, and the pur¬ 
chase of lands. The district officer recommends with reference to 
this work that a proper share to be borne by the United States would 
be the estimated cost of the main channel, which he places at 
$5,900,000. In addition to this work it is proposed that the United 
States provide the necessary channel of entrance, the maximum cost 
of which he estimates at $2,710,050. 


JAMAICA BAY , AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 15 

The plan proposed for securing a channel of entrance is— 

First. To dredge a channel 18 feet deep and 500 feet wide through the 
entrance to the beginning of the main channel at the southeast corner of 


Barren Island, estimated cost. $250, 500 

Second. Increase the dimensions of this channel to 30 feet by 1,500 feet, 

estimated cost. 1,016,500 

Third. Construct east jetty if it proves to be necessary, estimated cost... 724,500 
Fourth. Construct west jetty if it should become necessary, estimated 

cost. 589,500 

Contingencies. 129,050 


Total. 2,710,050 


Owing to the character of the improvement the cost of maintenance 
of the channel can be given only approximately. The district officer 
places this item at $55,600 annually. 

In the opinion of the district officer it is possible that all the work 
outlined for creating a channel of entrance may not be necessary. 
He proposes to undertake the work tentatively by the inauguration 
of dredging operations and then the construction of the jetties later 
should experience prove one or both of these to be essential to the 
economic maintenance of the channel. 

For reasons given within, the district officer believes that the 18- 
foot channel of entrance will serve the demands of commerce for 
some years, and recommends that even this should not be under¬ 
taken until the Secretary of War is satisfied that the city of New 
York is prepared to undertake the dredging of the main channel to 
a similar depth. 

As stated above, it is proposed that the United States shall bear 
the cost of dredging the main channel 30 feet deep and 1,000 feet 
wide, but to avoid serious complications, the district officer recom¬ 
mends that the work be done by the city of New York in connection 
with the general development of the interior harbor and that it be 
reimbursed by the United States for the dredging done in excavating 
this main channel at the rate of 10 cents per cubic yard, place meas¬ 
urement, to an amount not exceeding $5,900,000, less the cost of 
inspection and superintendence. 

The magnitude of the commerce of New York is described in the 
report of the district officer, and its importance is a matter of such 
general knowledge that it does not appear necessary to enter upon 
this phase of the question again in detail. 

As the Board was in doubt as to the amount of work which should 
be undertaken by the United States, it notified the mayor of the 
city of New York that it would be glad to have such representatives 
as might be designated appear before the Board and present such 
data and arguments bearing on the case as might seem to be de¬ 
sirable. In response to this notification, there appeared before the 
Board Mr. Nelson P. Lewis, city engineer of New York, Mr. W. G. 
Ford, of the Jamaica Bay Improvement Association, and Hon. 
Charles B. Law, M. C., from Brooklyn, N. Y. Mr. Lewis submitted 
at this hearing a partial estimate of cost to the city of the develop¬ 
ment. The estimate is inclosed herew ith, and from this it appears that 
the ultimate development of the west and north shore oi the bay 
onlv will cost somewhere in the neighborhood of $70,000,000. 

After careful consideration the Board is of the opinion that the 
United States should adopt a project of improvement consisting 









16 JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 

of the entrance channel and a main interior channel, as outlined above. 
The Board is further of the opinion that the portion of the total expense 
to he borne by the city of New York should be any excess in the 
cost of excavating the main interior channel over 8 cents per cubic 
yard for 59,000,000 cubic yards ($4,720,000). In reference to this 
item it may be stated that this unit price is believed sufficient to 
cover the cost to the city, taking into account the benefit accruing 
from the use of the material excavated as necessary filling to its 
adjacent dock property. The Board further recommends that 
the dredging of the main channel be done by the city of New York, 
and that the city be reimbursed therefor at the rate of 8 cents 
per cubic yard, place measurement, for all material dredged within 
the limits of the main channel to the extent only of $4,720,000, less 
cost to the Government of superintendence, surveying, and inspect¬ 
ing, and that the city shall not be reimbursed for excavating any 
material from the main channel below the depth of eighteen feet 
until the United States has undertaken to increase the depth of the 
entrance channel beyond 18 feet. 

The Board is also of the opinion that the improvement of the 
entrance channel should be prosecuted in the order given by the 
district officer as follows: 

First. Dredge a channel 18 feet deep and 500 feet wide through the entrance as 
far as the southeast comer of Barren Island; in other words, to the beginning of the 
main channel. 

Second. Maintain this entrance channel. 

Third. Increase this channel to a width of 1,500 feet and depth of 30 feet. 

Fourth. If in maintaining this channel, it be found advisable to construct the east 
jetty, do so under continuing contract, for once its necessity is determined, economy 
of construction will demand continuous speedy work. 

Fifth. Construct the west jetty, gradually extending it to such length as may be 
found advisable. 

The Board further recommends that the 18-foot entrance' channel 
should not be dredged until the Secretary of War is satisfied that the 
city of New York is prepared to undertake its part of the general plan 
of improvement outlined above. The estimated cost of this channel 
for first development of 18 feet is $250,500, and this is the amount of 
the first appropriation necessary under the conditions cited. 

The ultimate cost to the United States of the plan proposed for 
adoption will be as follows: 


(a) Main channel. $4,720,000 

( b ) Dredging the 18-foot entrance channel. 250, 500 

(c) Widening and deepening this channel. 1, 016, 500 

0 d ) East jetty. 724, 500 

(e) West jetty. 589, 500 

(/) Contingencies. 129, 050 


Total.. 7,430,050 


The cost of annual maintenance of the 30-foot entrance channel is 
estimated at $55,600. It is to be noted that items (d) and (e) may 
not be necessary. 

For the Board: 

D. W. Lockwood, 

Colonel , Corps of Engineers , 

Senior Member of Board. 











JAMAICA BAY, AND ROCKAWAY AND DEAD HORSE INLETS, N. Y. 17 


letter of the chief engineer of the board of estimate and apportionment 

OF THE CITY OF NEW YORK. 

Washington, D. C., February 23, 1909. 

Gentlemen: The estimates submitted to you to-day indicating the amounts which 
the city of New York would be obliged to expend in order to carry out the proposed 
partial improvement of Jamaica Bay were based upon the following quantities and 
prices: 

Dredging between the pier and bulkhead lines, at 12 cents per cubic yard. $7, 200, 000 
Difference between the 8 cents and 12 cents per cubic yard for the main 
channel, provided the Government reimburses the city to the extent of 


8 cents. -2,360,000 

Bulkhead (timber) at $25 per foot. 1,187, 500 

Bulkhead of concrete, at $60 per foot. 2, 850, 000 

3,000 acers of land. 4, 500, 000 

112 piers of Chelsea type. 31, 360, 000 

Sheds for same. 21, 000, 000 


Total for timber bulkheads. 67, 600, 000 

Total for concrete bulkheads. 69, 270, 000 


The above estimate includes the improvement of that portion of Jamaica Bay for 
which pier and bulkhead lines have already been tentatively approved by the board 
of estimate and apportionment of the city of New York, and extends from the south¬ 
easterly corner of Barren Island to a point some 7,000 feet east of the Long Island 
Railway trestle crossing Jamaica Bay. 

Respectfully, Nelson P. Lewis, 

Chief Engineer, Board of Estimate and Apportionment 

of the City of New York * 

The Board of Engineers for Rivers and Harbors, 

Washington, D. C. 


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JAMAICA BAY 

AND 

ROCKAWAY INLET, N.Y. 

PRELIMINARY MAP. 

To accompany report submitted January 2>0, 1909 in 
compliance with River and Harbor Act of March 2.1907. 


36.7 




SCALE 


1000 500 0 


10000 FEET 


27.2 




U S. Engineer Office ( districtnoj.) 

New York, N.Y. January 30, 1909. 

Respectfully forwarded to the Chief of Engineers, U S Army, 
with report of this date. 


Note. 

Soundings are expressed in feet and tenths 
and refer to the plane of mean low wafer, 
from survey of November-December, 1908. 

Traced from “Progress Sketch showing Harbor 
Lines and Channel for part of Jamaica Bay, 
recommended by the Jamaica Bay Improvement 
Commission December 1908"except soundings 
and dotted shore tine which are from a survey 
made under the direction of Colonel John 6.D. Knight, 
Corps of Engineers, U.S Army September- December 1900. 


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